[Federal Register Volume 81, Number 35 (Tuesday, February 23, 2016)]
[Notices]
[Pages 8976-8978]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2016-03674]
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DEPARTMENT OF HOMELAND SECURITY
Coast Guard
[Docket No. USCG-2013-0915]
RIN 1625-ZA31
Carriage of Conditionally Permitted Shale Gas Extraction Waste
Water in Bulk
AGENCY: Coast Guard, DHS.
ACTION: Notice of withdrawal.
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SUMMARY: The Coast Guard announces that it has withdrawn the October
30, 2013, proposed policy letter concerning the carriage of shale gas
extraction waste water (SGEWW) in bulk via barge. The policy letter
proposed a new standardized process and specified conditions under
which a barge owner could request and be granted a Certificate of
Inspection endorsement or letter allowing the barge to transport SGEWW
in bulk. That proposed policy is withdrawn and no new policy is
proposed at this time. Barge owners may
[[Page 8977]]
continue to request case-by-case approval to transport SGEWW under
current regulations by providing recent detailed chemical composition,
environmental analyses, and other information for each individual tank
barge load. The Coast Guard will consider instituting a standardized
process for transporting SGEWW in bulk after it has assessed whether
current regulations are inadequate to handle requests for transport of
SGEWW in bulk and environmental impacts that may be associated with
SGEWW transport by barge.
DATES: The proposed policy letter was withdrawn February 23, 2016.
FOR FURTHER INFORMATION CONTACT: If you have questions on this notice,
call or email Dr. Cynthia A. Znati, Office of Design and Engineering
Standards, Hazardous Materials Division, U.S. Coast Guard; telephone
202-372-1412, email [email protected].
SUPPLEMENTARY INFORMATION:
General Discussion
This notice is issued under the authority of 5 U.S.C. 552(a). On
October 30, 2013, the Coast Guard published a proposed policy letter
and requested comments on a new standardized process including the
specific carriage conditions for the transport of shale gas extraction
waste water (SGEWW) in bulk via barge (78 FR 64905). The proposed
policy would have set out a process for performing chemical analyses of
each load of SGEWW, a radiation survey of each barge before any
personnel entered the barge and before changing from SGEWW to another
cargo, and tank venting to prevent accumulation of radon. It also would
have described limits on radioactivity concentration and consignment
activity (effectively, limits on emission of radiation) for SGEWW
cargoes.
We proposed the policy letter in response to the rapid development
in recent years of horizontal drilling and hydraulic fracturing
(commonly known as ``fracking'') that produce large volumes of shale
gas and oil in the northern Appalachian Mountains. This fracking
produces large amounts of SGEWW, some of which may contain hazardous
materials including radioactive isotopes. Transport of SGEWW by vessel
falls under the Coast Guard's existing regulations for bulk liquid
hazardous material and requires specific, case-by-case permission. We
explain these regulations in more detail, below.
In 2011 a tank barge owner asked the Coast Guard for permission to
transport SGEWW by tank barge. Anticipating that this would be the
first of many requests, the Coast Guard proposed a standardized
national policy to replace the case-by-case process which might have
led to delays in processing those requests. (We have not received
significant interest from industry, however, which is one of the
reasons we are withdrawing the proposed policy.) The notice announcing
the policy letter provided a 30-day public comment period. We received
70,115 comments in response to the notice and proposed policy letter.
These comments are generally described below, with our responses, in
the section titled ``Comments Received.''
We are now withdrawing the proposed policy. This notice officially
withdrawing the proposed policy letter is intended to resolve any
questions about the status of the proposed policy letter or the
existing regulatory process. No new policy is proposed at this time.
The Coast Guard will continue to consider requests for permission to
transport SGEWW in bulk under our existing regulatory authority
described in the next section. We will use experience with individual
approvals of SGEWW barge transport to inform any future rulemaking or
guidance on this subject.
Carriage of SGEWW Under Existing Regulations
The Coast Guard regulates the carriage of bulk liquid hazardous
material by listing, in the Code of Federal Regulations (CFR),
permitted cargoes and the safety requirements that vessel owners must
meet in order to carry those cargoes; see, for example, the list at
Table 1 in 46 CFR part 153. Unlisted cargoes may not be carried without
specific permission from the Coast Guard. The regulations provide that
vessel owners may request and receive the necessary permission by
providing information about each cargo so that the Coast Guard can
prescribe necessary safety measures; see, for example, the requirements
in 46 CFR 153.900. SGEWW is an unlisted cargo. In order to carry SGEWW
on a tank barge, the vessel owner must request permission from the
Coast Guard, provide the information about each individual cargo that
the Coast Guard needs in order to analyze potential impacts and develop
carriage requirements, and then comply with the requirements specified.
Although the proposed policy letter would have standardized that
information and request process for SGEWW, withdrawal of the policy
letter does not change the Coast Guard's authority to consider
approving unlisted cargoes on a case-by-case basis under the existing
regulations.
Comments Received
Form letters. Of the 70,115 comments the Coast Guard received,
68,747 comments were brief statements in similar format and wording
that expressed disapproval of the proposed policy letter and expressed
opposition to hydraulic fracturing. Commenters stated concerns that a
spill or accident would release toxic chemicals into our rivers and
could put our drinking water at risk. The Coast Guard notes the general
concerns expressed in these comments, but also notes these comments
expressed the writers' general opposition to the proposed policy letter
without offering input regarding the substance of transporting SGEWW in
bulk as described in the policy. The Coast Guard has no legal authority
to permit, prohibit, or place conditions on the practice of fracking
itself. The Coast Guard's only authority in this matter is the
authority to evaluate the safety of SGEWW as a cargo and set conditions
on its carriage by vessel.
Other comments. We also received approximately 1,368 comments that
did not employ a form template and are discussed here and below. One
submission \1\ was signed by representatives of 140 organizations and
other entities from various States. This (and comments submitted by
others) stated that the Coast Guard should expect wide interest in
SGEWW barging and that a rulemaking, rather than a policy letter, is
the appropriate approach to this issue. Commenters indicated a
rulemaking would more clearly prescribe rules, how to achieve
compliance, a consistent and transparent implementation process, an
effective means of enforcement, and improved opportunities for public
participation. The Coast Guard does not agree that a rulemaking would
have provided more transparency or opportunities for public
participation than were provided in the public comment period on the
proposed policy letter. Detailed information on how to achieve
compliance is often better suited to guidance documents such as the
withdrawn policy letter. Effective enforcement is already provided via
existing regulations prohibiting the carriage of unlisted cargoes
without specific permission from the Coast Guard.
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\1\ Docketed as USCG-2013-0915-0932.
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The comment also noted that the proposed chemical analysis protocol
allows shippers to propose alternatives but those alternatives would
not be
[[Page 8978]]
transparent to the general public. Many Coast Guard regulations provide
the opportunity to propose alternatives or equivalent methods of
compliance for the Coast Guard's approval; for examples see 46 CFR
62.15-1, 114.540, and 110.20-1, among others. Allowing alternatives
provides the flexibility to use new technology, including improved
safety and pollution prevention equipment. In addition, the Coast Guard
consistently explains in its policy letters and other guidance that it
will consider alternate methods of compliance with the binding
statutory and regulatory requirements. Coast Guard determinations on
alternate or equivalent methods of compliance generally are not
publicly available because they do not create rights or obligations for
anyone other than the requester, and they could contain proprietary
information about the alternative requested or approved.
The same group of 140 organizations and entities submitted another
comment,\2\ stating that the proposed policy letter would result in
uncertain or unknown effects or risks to various aspects of the
environment and public health. The commenters also thought the proposed
policy would result in negative impacts to areas that have unique
historical, cultural, and ecological characteristics. The Coast Guard
notes the concerns raised in these comments and will carefully consider
the environmental impacts of each request to ship SGEWW by barge on a
case-by-case basis under existing regulations.
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\2\ Docketed as USCG-2013-0915-1036.
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Another submission \3\ was made on behalf of 46 organizations in
Ohio, Pennsylvania, Michigan, Kentucky, Illinois, New York, and West
Virginia. This comment (and comments submitted by others) has similarly
stated that the Coast Guard should require chemical analyses of SGEWW
barge loads to be submitted to the agency, not merely held by industry.
Under the proposed policy, vessel owners would have retained records of
the chemical analyses and surveys, but the Coast Guard would have
examined those records prior to allowing workers or Coast Guard
personnel to enter a barge's tank. Also, by cumulating data from the
chemical analyses records we could determine whether hazardous
materials had built up within the barge's tank.
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\3\ Docketed as USCG-2013-0915-0855.
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Various commenters, including some commenters employing a form
template, also said that the Coast Guard's use of a categorical
exclusion to preclude more thorough environmental analysis of the
proposed policy letter's impact was improper under the National
Environmental Policy Act of 1969 \4\ (NEPA), and that more
environmental analysis of the effects of the proposed policy letter is
necessary to assess the likelihood of a spill. The Coast Guard intends
to evaluate the environmental impacts under NEPA for each request to
ship SGEWW by barge, on a case-by-case basis under existing
regulations. This information may be used, as appropriate, to inform
any future rulemaking or guidance on this issue.
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\4\ Codified as 42 U.S.C. 4321 et seq.
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Finally, the commenters believe the Coast Guard gave inadequate
consideration to worker safety hazards and mitigation measures. As
described above, however, the Coast Guard would have used the analyses
and surveys described in the proposed policy to evaluate the safety of
the barge tanks before allowing personnel to enter. In addition, once
the chemical components of each individual load of SGEWW were
identified, the Coast Guard could have used the regulatory process for
unlisted cargoes to prescribe other protocols to mitigate safety risks
to workers.
The Coast Guard also received many comments from individuals
raising additional varied concerns. Some comments requested an
extension of the public comment period, which is unnecessary in light
of this withdrawal. Other comments stated that the proposed policy
letter unfairly transfers industry costs and risks to society in
general; we disagree that Coast Guard decisions on safe transport of
SGEWW in bulk by water necessarily transfer costs and risks away from
industry, especially as the proposed policy does not affect the
creation or disposal of SGEWW, or its transport by truck or rail. We
also received comments saying that the Coast Guard provided inadequate
information about SGEWW's ultimate destination and the methods for its
ultimate disposal; the ultimate destination and disposal of SGEWW was
outside the scope of our proposed policy on safely transporting SGEWW.
Also, commenters thought that the Coast Guard provided inadequate
information about cleanup plans in the event of an SGEWW spill, but
environmental liability and cleanup requirements were outside the scope
and purpose of the proposed policy. The Coast Guard intends to evaluate
requests to ship SGEWW by barge on a case-by-case basis under existing
regulations. Any other statutes or regulations found to be applicable
under this case-by-case review would be included when developing
carriage requirements.
Of the comments received, 21 comments thought the proposed policy
letter should be finalized. These commenters suggested that the risk of
transporting SGEWW by vessel was lower relative to transport by rail or
truck, or that SGEWW is less hazardous than other vessel-borne cargoes
such as oil and gasoline. The Coast Guard notes these comments in
support of the proposed policy letter.
The Coast Guard appreciates all the comments received. It will
continue to study this issue in light of the comments received before
taking any further action on this matter. In particular, the Coast
Guard will assess whether current regulations are adequate to handle
requests for transport of SGEWW in bulk and environmental impacts that
may be associated with SGEWW transport by barge.
Dated: February 17, 2016.
J.G. Lantz,
Director of Commercial Regulations and Standards, U.S. Coast Guard.
[FR Doc. 2016-03674 Filed 2-22-16; 8:45 am]
BILLING CODE 9110-04-P